Board Relaxes Bilingual-Ed. Policy in Calif.

The California board of education has given school districts more
flexibility in how they teach students who speak little or no English,
a move that may discourage the use of bilingual education in the state
with more such students than any other in the nation.

At the same time that the board was debating the policy, wrangling
over credentialing rules for teachers of limited-English-proficient
students was pointing up sharp divisions on the issue among California
teachers.

And Delaine Eastin, a former Democratic Assembly member who was
elected the state schools superintendent last year, has come under fire
from some bilingual-education advocates. They view her support of the
state board's new policyand some of her reported comments on bilingual
educationas a letdown.

The developments show that the politically charged debate over how
best to educate California's 1.2 million L.E.P. students--who make up
one quarter of its enrollment--is very much alive.

Some national observers suggest that the events in California
dramatize a larger backlash against bilingual education.

"Bilingual education is very clearly under attack in many other
quarters," said James J. Lyons, the executive director of the National
Association for Bilingual Education.

Local Flexibility

The California state board unanimously adopted the new policy at its
July 14 meeting after months of public hearings and deliberations. It
is a far cry from the original proposal floated last year, which would
have emphasized that native-language instruction is not required. Some
advocates of bilingual education said that draft would have effectively
dismantled such programs and violated state law. (See Education Week,
12/14/94.)

While the state's bilingual-education law was allowed to expire in
1987, its language provided that its "general purposes" would remain in
effect even if it were not renewed. That section of the law calls for
students to receive primary-language instruction "when necessary" to
insure them equal opportunity for academic achievement.

The new policy essentially restates that provision, but emphasizes
that the board intends to encourage districts to move L.E.P. students
into English-language classes as quickly as possible.

It also states that the board intends to grant districts waivers
from providing native-language instruction if they can show that
students will learn English and will not fall behind academically. But
it does not spell out exactly how the districts would have to
demonstrate that.

The policy also directs the state education department to focus its
compliance monitoring on the programs' results. The department has been
accused by some districts of illegally imposing requirements on them
and dissuading them from adopting more English-only teaching
approaches.

A Matter of Emphasis

While the document has made headlines in California, the policy's
impact on schools is difficult to predict. According to the state
education department, only 28 percent of California's L.E.P. students
were being taught in their native languages in at least two subjects
during the 1993-94 school year.

And the waivers are not new; about 80 districts are now operating
under waivers exempting them from providing native-language instruction
for some or all of their L.E.P. students. The real policy change,
observers say, is a matter of emphasis.

"Districts who have strong primary-language programs will continue
in that direction," said Silvina Rubinstein, the director of state and
legislative affairs for the California affiliate of the national
bilingual educators' group.

But the policy may give schools disenchanted with bilingual
education, or under pressure from local critics, the chance to drop
it.

"This is an important symbol districts can use as cover," said
Michael W. Kirst, an education professor at Stanford University and a
former president of the state board. "The board is sending a pretty
strong message here."

A spokeswoman for U.S. English, an organization that supports making
English the nation's official language and is critical of bilingual
education, predicted that more states will move in California's
direction.

Many observers noted that the bilingual-education debate must be
viewed through the lens of a post-Proposition 187 California. The
controversial measure, championed by Republican Gov. Pete Wilson, would
deny illegal immigrants most social services, including public
education. Although voters approved it last year, the courts have
delayed its implementation. (See Education Week, 11/23/94 and related
story.)

More recently, the Governor has supported a proposed ballot measure
that would ban racial preferences in government programs, and the state
board of regents voted to drop affirmative action in college
admissions. (See related story.)

Political Climate

In this political climate, the policy on limited-English
students--the product of a state school board made up of Mr. Wilson's
appointees--has been hailed by many as a compromise. Superintendent
Eastin, who says the policy will help schools focus on results instead
of methodology, is among them.

"We have to be honest enough with one another to say, when something
isn't working, it's time to re-examine it," Ms. Eastin was quoted as
saying in a May 22 Los Angeles Times article. "There has to be a
point at which we bite the bullet and say, 'At least, they have to
learn English.'"

(See education.

In an interview last month, Ms. Eastin said that many of her remarks
were taken out of context. She maintained that her position has not
changed and that she continues to support bilingual education--as long
as students learn English and study the regular school curriculum, and,
whenever possible, retain their native languages.

"I've tried to refine my position and foster consensus," she said,
calling herself a "realist."

"I'm trying to lessen some of the hostilities I see in California
right now," Ms. Eastin said.

That hostility has also manifested itself in a dispute among
California teachers.

Union Squabble

Last year, the powerful, 240,000-member California Teachers
Association won approval of a bill allowing many teachers to side-step
an updated credentialing system for teachers of L.E.P. students. (See
related story

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